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Chapter 3 - Devices - Sub Chapter
300 - General / Processes Title: Commercialization
of In Vitro Diagnostic Devices
|
Date Draft released: January 5, 1998
This draft guidance document represents the
agency's current thinking on commercialization of in vitro diagnostic
devices labeled for research use only or investigational use only. It does
not create or confer any rights for or on any person and does not operate
to bind FDA or the public. An alternative approach may be used if such
approach satisfies the requirements of the applicable statute,
regulations, or both.
Interested persons may submit by April 6, 1998 to
the Dockets Management Branch (HFA-305), Food and Drug Administration,
12420 Parklawn Drive, room 1-23, Rockville, Maryland 20857 written
comments on the draft CPG entitled "Commercialization of In Vitro
Diagnostic Devices (IVD's) Labeled for Research Use Only or
Investigational Use Only.'' Two copies of any comments are to be
submitted, except that individuals may submit one copy. Comments are to be
identified with the Federal Register docket number [97D-0506]
The agency will review all comments, but in issuing
a final CPG, need not specifically address every comment. The agency will
make changes to the CPG in response to comments, as appropriate. A copy of
the draft CPG and received comments may be seen in the Dockets Management
Branch (address above) between 9 a.m. and 4 p.m., Monday through Friday.
For questions regarding this draft document, contact Office
of Compliance (HFZ-300), Center for Devices and Radiological Health, Food and
Drug Administration, 2098 Gaither Road, Rockville, MD 20850,
| U.S. Department of Health and Human Services Food and Drug Administration Office of Regulatory Affairs Office of Enforcement Division of Compliance Policy |
Chapter 3 - Devices
Sub Chapter 300 - General / Processes
Title: Commercialization of In Vitro Diagnostic
Devices (IVD's) Labeled for Research Use Only or Investigational Use Only
- Draft
Date Draft released: January 5, 1998
BACKGROUND:
The Investigational Device Exemptions (IDE)
regulations (Title 21, Code of Federal Regulations (CFR), Part 812)
require prior Food and Drug Administration (FDA) approval of clinical
investigations intended to establish the safety and effectiveness of
significant risk devices. Manufacturers may conduct certain categories of
investigations without filing an IDE application if certain requirements
set forth in 21 CFR 812.2(b) are met.
In vitro diagnostic devices (IVD's) may be exempt
from IDE requirements if certain conditions are met: the testing is
non-invasive, does not require invasive sampling presenting significant
risk, does not introduce energy into a subject, and is not used as a
diagnostic procedure without confirmation of the diagnosis by another,
medically established diagnostic product or procedure (21 CFR
812.2(c)(3)). In addition, to be exempt from the IDE regulation, IVD's
must comply with 21 CFR 809.10(c)(2), which requires that the labeling for
research and investigational devices state, as applicable in each case: "For
Research Use Only. Not for use in diagnostic procedures" or "For
Investigational Use Only. The performance characteristics of this product
have not been established."
Many manufacturers of IVD's have not followed the
requirements set forth in 21 CFR Parts 809 and 812. As a result, numerous
IVD's labeled for research or investigational purposes are being promoted,
distributed, and used for purposes other than research or investigation.
This commercialization has resulted in the widespread use of laboratory
tests with unproven performance characteristics. Use of such tests may
mislead providers of medical diagnosis and treatment and cause serious
adverse health consequences to unknowing patients.
Unless exempted from the requirement to submit a premarket notification under Section 510(k), IVD's that are commercially distributed for diagnostic use prior to Agency clearance or approval are adulterated and misbranded under the Federal Food, Drug, and Cosmetic Act (21 U.S.C. 351(f)(1)(B) and 352(o)). Such distribution subjects the devices and responsible firms to regulatory action. This is true even if the IVD's are labeled in accordance with 21 CFR 809.10(c) and are used in combination with other medically accepted diagnostic devices or procedures.
PURPOSE:
This Compliance Policy Guide (CPG) provides
guidance on FDA's enforcement priorities concerning investigational or
research IVD's that are being commercialized for diagnostic or prognostic
purposes.
Additionally, this draft CPG does not pertain to in
vitro products whose use is limited to laboratory research that is
entirely unrelated to the development of IVD's.
POLICY:
This policy is applicable to IVD's that are
regulated by the FDA's Center for Devices and Radiological Health (CDRH)
and Center for Biologics Evaluation and Research (CBER). This CPG applies
to IVD's that are sold or distributed as test kits. However, this CPG does
not pertain to analyte specific reagents (ASR's) that are sold and used in
accordance with 21 CFR 809.10(e), 809.30, and 864.4020.
IVD's labeled "For Investigational Use"
are commercialized, in violation of the Federal Food, Drug, and Cosmetic
Act (the Act), if they are labeled or promoted with statements indicating
the devices are safe or effective for in vitro diagnostic use prior to
Agency clearance or approval (21 U.S.C. 352(a), 351(f)(1)(B), and 352(o)).
Devices labeled "For Research Use" are
mislabeled if the device is being used for investigational purposes, i.e.,
in a clinical study, even if involving only one subject, where the
diagnostic or prognostic measurement will be reported to the patient's
physician or medical records or will be used to assess the patient's
condition, regardless of whether or not confirmatory tests or procedures
are used. Research use is limited to the initial research phase of product
development that is necessary to identify test kit methods, components,
and analytes to be measured or to laboratory research that is entirely
unrelated to product development. See 21 CFR 809.10(c)(2)(I).
However, the Agency recognizes that certain
improperly commercialized IVD's have been in extensive clinical use for a
significant period of time. The Agency further recognizes that immediate
regulatory action against certain of these IVD's might result in adverse
consequences to individual patients and the public health. Therefore, FDA
is publishing this CPG in order to describe the Agency's enforcement
policy, which includes the Agency's intention to exercise discretion for
designated periods of time, so as not to cause undue disruption to the
possibly beneficial use of IVD's that have not received Agency clearance
prior to commercialization.
Except as provided below under Enforcement Priority
Category I, FDA intends to prioritize its enforcement actions based on how
long the product has been improperly commercialized. Firms that have
commercialized IVD's for relatively long periods of time should be able to
undertake investigations and generate data more quickly than firms that
have begun to commercialize their IVD's more recently.
Accordingly:
For devices that have been in use for more than 10 years, the Agency intends to exercise its enforcement discretion to permit IVD manufacturers, importers and distributors up to 18 months from the Federal Register publication date of the Notice of Availability (NOA) for this CPG to obtain Agency approval of a premarket approval (PMA) application or product license application (PLA) or clearance of a Section 510(k) (premarket notification) submission.
For devices that have been in use 5 to 10 years,
the Agency intends to exercise its enforcement discretion to permit IVD
manufacturers, importers and distributors up to 24 months to obtain the
necessary PMA/PLA approvals or 510(k) clearances. For devices that have
been in use for less than 5 years, the Agency intends to exercise its
enforcement discretion to permit IVD manufacturers, importers and
distributors up to 30 months to obtain the necessary PMA/PLA approvals or
510(k) clearances.
FDA intends the exercise of its enforcement discretion, under this timetable, to be contingent on firms taking the necessary steps to obtain the requisite approvals or clearances, including undertaking, within six months of the publication of the NOA for this CPG, any necessary clinical investigations or other studies under a protocol sufficient to allow determination of the IVD's safety and effectiveness.
The FDA believes that the 18 to 30 month time
period that begins with the publication date of the NOA for this CPG is a
reasonable period for gathering safety and effectiveness data and
obtaining Agency review for clearance or approval.
During this 18 to 30 month time period, FDA intends
to exercise its enforcement discretion against improperly commercialized
IVD's as follows:
Enforcement Priority Category I
IVD's that meet the following criteria will
constitute FDA's highest enforcement priority. FDA intends to take
immediate regulatory action to remove such violative commercialized
devices from the marketplace. The following types of unapproved
commercialized IVD's fall into FDA's Enforcement Priority Category I:
Enforcement Priority Category II
Category II includes all improperly commercialized
IVD's that are not identified in Enforcement Priority Category I. During
the 18 to 30 month time period following the publication of the NOA for
this CPG, FDA intends to exercise its enforcement discretion with respect
to IVD's in Enforcement Priority Category II, and refrain from instituting
regulatory action if a firm can document its efforts to collect data for
submission of Section 510(k) notifications, PMA applications, or PLA's
within the 18 to 30 month time period.
Manufacturers, importers, and distributors of IVD's
that fall within Enforcement Priority Category II should submit their
Section 510(k), PMA, or PLA submissions as early as possible, in order to
ensure that FDA will have sufficient time to complete its review before
the 18 to 30 month time period elapses.
During this 18 to 30 month time period,
manufacturers, importers, and distributors who have not obtained PMA or
PLA approval or Section 510(k) clearance but claim exemption from the IDE
regulations under 21 CFR 812.2(c) are to label their IVD's in accordance
with 21 CFR 809.10(c). This regulation requires manufacturers, importers,
and distributors to label their IVD's, as applicable: "For Research
Use Only. Not for use in diagnostic procedures" or "For
Investigational Use Only. The performance characteristics of this product
have not been established."
Additionally, in order to be in compliance with 21
CFR 809.10(c), manufacturers, importers, and distributors of uncleared and
unapproved IVD's must remove any labeling statements that indicate that
performance characteristics (e.g., sensitivity or specificity) or safety
and effectiveness have been established for any indicated use. However,
for three months from the publication date of the NOA for this CPG, the
Agency does not intend to initiate enforcement action against
manufacturers, importers, and distributors of IVD's in Enforcement
Priority Category II who have failed to comply with these labeling
requirements.
Appendix A provides guidance concerning definitions
and labeling for research and investigational IVD's.
18 to 30 Month Period Not Applicable to New
IVD's
The 18 to 30 month time period allotted for
Enforcement Priority Category II devices to come into compliance through
collection and submission of data does not apply to manufacturers,
importers, and distributors of IVD's that were not in commercial
distribution for diagnostic or prognostic purposes before the publication
date of the NOA for this CPG. These products are required to have Agency
clearance or approval, as appropriate, prior to commercialization and the
Agency does not intend to exercise enforcement discretion with respect to
these products.
"For Research Use Only" Devices
Undergoing Laboratory Research
Devices marketed with labeling stating "For
Research Use Only. Not for use in diagnostic procedures" that are not
offered, sold, promoted, or used for diagnosis or prognosis in humans
continue to be eligible for the exemption from the Investigational Device
Exemptions regulation (21 CFR Part 812) if they comply with all applicable
provisions of 21 CFR 812.2(c) and all labeling required by 21 CFR
809.10(c)(2)(I).
However, the Agency recognizes that many
manufacturers, importers, and distributors have labeled their IVD's as "For
Research Use Only" devices while allowing them to be investigated or
commercialized for diagnosis or prognosis in humans. In order to fall
within Enforcement Priority Category II, among other things, these
mislabeled devices should be relabeled in accordance with 21 CFR
809.10(c)(2)(ii) to bear the statements: "For Investigational Use
Only. The performance characteristics of this product have not been
established." Note that investigational devices mislabeled as
research devices will fall into Enforcement Priority Category I if not
appropriately relabeled within three months of the publication date of the
NOA for this CPG.
Applicability of IRB Approval and Informed
Consent
Unless specifically exempted by the Protection of
Human Subjects (21 CFR Part 50) or Institutional Review Board (IRB) (21
CFR Part 56) regulations, all sponsors of an investigational IVD exempted
from the IDE regulation under the provisions of 21 CFR 812.2(c) are to
obtain prior IRB approval of the study protocol and patient informed
consent documents, and provide each patient with a copy of the informed
consent document. See 21 U.S.C. 360j(g)(3).
Collection of Data
The data to be collected during the 18 to 30 month
time period are to be based on scientifically sound controlled studies
that are sufficient to 1) allow FDA to determine under a Section 510(k)
submission that the device is substantially equivalent to a legally
marketed predicate device, or 2) allow FDA to determine under a PMA
application or PLA that the device is safe and effective for its labeled
intended use(s). Additional guidance for data to be used in submissions to
the Agency are discussed in Appendix B under "Collection of Data."
FDA strongly encourages investigational study
sponsors to contact CDRH's Division of Clinical Laboratory Devices (DCLD)
in the Office of Device Evaluation (ODE) or CBER's Office of Blood
Research and Review to obtain guidance on appropriate study protocol
design and data analysis techniques prior to initiation of the study.
Certification Programs
FDA encourages IVD manufacturers, importers, and
distributors to develop certification programs that ensure proper research
use or investigational use of IVD's that have not yet received FDA
approval or clearance, as appropriate, for commercial marketing. FDA
believes that certification programs will help manufacturers, importers,
and distributors of IVD's ensure that the distribution and use of their
IVD's will be controlled and limited to use in scientifically sound
research or investigations. A firm that has implemented a certification
program is likely to be able to provide FDA with documentation to
establish that a particular IVD labeled "For Research Use Only"
or "For Investigational Use Only," in accordance with 21 CFR
809.10(c)(2)(I or ii), is not being commercialized for diagnostic or
prognostic use.
The existence and use of a certification program
does not relieve a manufacturer, importer, or distributor of any
responsibilities under the Act or regulations, including the obligation to
obtain Agency approval or clearance, as appropriate, for the device.
Guidance on appropriate elements for certification
programs for IVD's "For Investigational Use Only" and "For
Research Use Only" is provided in Appendix C.
REGULATORY ACTION GUIDANCE:
Prior to initiation of regulatory action against
observed violations, District Offices should evaluate any documentary
evidence a firm may have to establish that the device is an appropriately
labeled and used ASR or that there is limited distribution and use
pursuant to laboratory research use, or alternatively, investigational use
under a study protocol designed for collection of data to be submitted to
FDA in a Section 510(k) notification, PMA application, or PLA.
If the IVD is subject to a PLA under the Public
Health Service Act, appropriate charges, e.g., 42 U.S.C. 262, should be
discussed with CBER's Office of Compliance (HFM-610).
If violations are identified, the District Office
may prepare a Warning Letter to the firm. Concurrence from CDRH's or
CBER's Office of Compliance is required before the letter is issued.
The charges listed below should be considered when
a firm fails to comply with premarket notification or premarket approval
requirements. These charges are immediately applicable to products that
are in Enforcement Priority Category I. After the expiration of the 18 to
30 month time period, these charges may be used for products that are in
Enforcement Priority Category II.
Examples of charges that may be applicable against
violative products:
If the firm fails to provide the District Office
with adequate assurance that the IVD is an appropriately labeled and used
ASR or that it is being used in an ongoing scientific study for collection
of data or that deviations are being corrected, the District Office should
consider appropriate enforcement action, including seizure, injunction,
prosecution, and civil penalties.
APPENDICES
Appendix A - Definitions and Labeling
I. IVD's That Are Intended for Investigational
Use-Definitions
An "investigational device" is a device
that is the object of an investigation (21 CFR 812.3(g)). "Investigation"
means clinical investigation or research involving one or more subjects to
determine the safety or effectiveness of a device (21 CFR 812.3(h)).
Investigations of IVD's are necessary to determine the safety and
effectiveness of the device for its intended clinical use, to develop
performance characteristics for the product, and to establish the expected
values. Unless exempt from premarket notification requirements, it is
illegal to commercially market IVD's that have not been approved or
cleared by FDA. Promotion and misrepresentation of an investigational
device is prohibited by the Act and the Agency's regulations (21 U.S.C.
351(f)(1)(B) and 352(o), 21 CFR 812.7(a) and (d)).
II. Labeling "For Investigational Use"
IVD's That Are Not Exempt under 21 CFR 812.2(c).
In accordance with 21 CFR 812.5, an investigational
device or its immediate package shall bear a label with the following
information:
"CAUTION - Investigational device. Limited
by Federal (or United States) law to investigational use."
"CAUTION - Device for investigational use
in laboratory animals or other tests that do not involve human subjects."
III. Labeling "For Investigational Use
Only" IVD's That Are Exempt under 21 CFR 812.2(c).
In accordance with 21 CFR 809.10(c), IVD's that are
exempt from the IDE requirements of Part 812 must be labeled: "For
Investigational Use Only. The performance characteristics of this product
have not been established." This labeling is required even for those
IVD's that fall within Enforcement Priority Category II and that FDA
intends to allow manufacturers to continue to market for 18 to 30 months
from the publication date of the NOA for this CPG.
IV. In Vitro Products Intended "For
Research Use Only"
An in vitro product intended for research use is a
product in the laboratory research phase of development. This research may
use animal or human tissues. A research device cannot be intended for
human clinical diagnostic or prognostic use. See 21 CFR 809.10(c)(2)(I).
Tests performed with in vitro products intended for
research use are tests used in a preclinical or nonclinical setting. While
research tests may be performed using either clinical or nonclinical
materials, research use devices have no intended clinical use and the
testing performed is not designed to provide data addressing or
demonstrating safety and effectiveness. A clinical investigation intended
to establish the safety and effectiveness of an IVD cannot be considered "research,"
even if only one human subject is involved.
The labeling requirements for a research in vitro
product should include:
Expected values (reference values) and specific
performance characteristics described at 21 CFR 809.10(b)(11) and (12)
should not be included in the labeling because one of the purposes of the
research is to study and establish the subject IVD's performance
parameters for its intended use.
FDA strongly encourages manufacturers, importers,
and distributors of "research use" in vitro products to maintain
a certification program that documents the researcher's agreement that the
device will not be used for investigations involving clinical use
including diagnosis, prognosis, and monitoring of a disease state and will
not be used in conjunction with patient records or treatment.
V. Labeling, Marketing, and Advertising for
Analyte Specific Reagents (ASR's)
In accordance with 21 CFR 809.10(e) an ASR shall
bear labeling with the following information:
Analyte specific reagents may only be sold to:
Advertising and promotional materials for analyte
specific reagents:
Appendix B : Collection of Data
In order to obtain FDA approval or clearance, valid
scientific data should be provided to the Agency in a Section 510(k)
notification, PMA application, or PLA that supports all safety and
effectiveness claims for the subject IVD. Manufacturers, importers, and
distributors should have an appropriate plan or protocol in place in order
to collect data to submit to FDA as part of a PMA application, PLA, or
Section 510(k) notification. The study protocol and study data should be
analyzed before and during the studies to ensure the validity of results.
All premarket submissions should include information specifying and
summarizing data that support the accuracy, precision, specificity, and
sensitivity of the device. See 21 CFR 809.10(b)(12).
The FDA will notify firms whether their submissions
have been approved or cleared. Firms are encouraged to include complete
sets of data supporting safety and effectiveness in all submissions to the
Agency. The Office of Device Evaluation has established a minimum
threshold of acceptability for Section 510(k) submissions and will refuse
to accept submissions where there are omissions of clearly necessary
information. PMA submissions will also be refused for omissions of
required information or inclusion of statements that are unsubstantiated
by scientific evidence presented in the application.
The Division of Clinical Laboratory Devices (DCLD)
has developed a series of guidance documents concerning IVD premarket
submissions which may be obtained from CDRH's Division of Small
Manufacturers Assistance (DSMA) or DCLD. Firms are encouraged to review
these documents prior to sending in submissions to FDA, and to obtain
comment and review from DCLD or CBER's Office of Blood Research and Review
on proposed study protocols, data collection formatting, and data
reporting for submissions to FDA.
Appendix C - Elements For Certification
Programs
I. Certification Program for IVD's Intended and
Labeled "For Investigational Use Only"
FDA strongly encourages manufacturers, importers,
and distributors of IVD's intended and labeled "For Investigational
Use Only" to develop certification programs. FDA believes
certification programs are one way to demonstrate compliance with 21 CFR
812.2(c)(3).
FDA believes an effective certification program
should include, but not necessarily be limited to, the following elements:
II. Certification Program for In Vitro Products
Labeled "For Research Use Only"
FDA recommends that manufacturers, importers,
distributors, and end users of in vitro products intended and labeled "For
Research Use Only" who choose to implement a certification program
include in the program, at minimum, the following elements:
Federal Register Notice: January 5, 1998
Updated January 12, 1998
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